Address by the European Union Special Representative on European perspective of Bosnia and Herzegovina

Good morning,


Thank you for coming despite the fact that it is Sunday. I hope you are here in order to have a frank discussion.


I would be happy not to give lecture, but to have a discussion with you. I would like to hear your views. I do believe that this will be a useful interaction, because it is really important to talk about the EU (European Union) integrations.


I think that [1]ACIPS has taken a very useful initiative. I would also take this opportunity to thank Ms. Judy Batt who already gave a series of lectures about EU perspective for Bosnia and Herzegovina (BiH) throughout your country. As I already said, I do not intend to give lectures. Instead, I would encourage your questions.


I divided my speech into four parts.


First part shall address the question: “Why EU?” “What are the benefits from being in the EU?” and I think this question should be a starting point.


This is probably the easiest question of all. It is easy to answer this question, because we all know what the EU means. The EU membership means: no borders, no visas and a common currency. For you, young people, it means a possibility to acquire education. For students it means that diplomas are accepted throughout the EU, which enable you to work on the entire territory of the EU.


Not only that, it also means that all citizens enjoy equal rights, equal protection, same standards of services delivered by the State, standard and quality of products. This is something people tend to forget when they say: “Well, even without borders, I do not have the money to travel.” This exactly is the point, the State must provide you with the treatment corresponding the European standards, so you cannot be deceived in terms of the quality of services, healthcare, etc. We often hear about the four European freedoms: freedom of movement of people, goods, services and capital. In that sense, the European Union is in deed one country where everyone is equal. This is yet another example why it is better to be in the EU than to be out. 


To continue, we have a second question: “What is current state of affairs concerning BiH?”


Answer: Unfortunately bad, I am sure you know, since Wednesday, when Serbia initialed the [2]Agreement on Stabilization and Association (SAA), Bosnia and Herzegovina is officially the last in the line. It stayed behind, and now it is the only country in the region that does not have an agreement-based relationship with the European Union.


Several times I have said that there is no such thing as stagnation. If Bosnia and Herzegovina is standing in one place, while the rest of the countries are making progress that means that Bosnia and Herzegovina is falling behind. Two years ago, it was entirely different situation. Four years ago, Bosnia and Herzegovina was one of the most prominent candidates for EU membership. Today, unfortunately, it is not so.


I assume that you have read the Progress Report, or at least some parts of the EC Progress Report, which provides annual overview, the definition of the progress that each of the countries applying for the membership have made. This report was made official last week, on 06 November 2007.


Progress Report also says that the progress of Bosnia and Herzegovina on its way towards EU membership is linked to four conditions. The conditions are:



  1. Police reform on the basis of [3]three European principles
  2. Full cooperation with the [4]International Criminal Tribunal for former Yugoslavia (ICTY)
  3. Reform of public broadcast
  4. Public administration reform

With regard to the political criteria, European Commission stated that the progress of Bosnia and Herzegovina has slowed down. When it comes to the economic criteria, it was also said that Bosnia and Herzegovina has marked little progress towards creating functional market economy. Key reforms are necessary in order for this country to be able to face the economic competitiveness and market economy in the European Union. It was also pointed out that there is very weak consensus on the key principles of the economic politics, and there is a deadlock with the reforms on Entity and State levels. When we talk about the European standards, I would like to stress that with membership in the EU you receive the European standards but you have to give European standards as well.


Very little results have been accomplished in some aspect such as energy, transport and education. However, minimum progress has been made in areas such as free movement of people, goods and services. These are the facts. Whether BiH will continue on its path towards the EU or not merely depends on these four reforms.


It is useful that the commitments that EU Member States have accepted in Thessaloniki in 2003 have not changed, and that BiH still has the perspective for membership. That is not insignificant. The European Union is not too enthusiastic about its further enlargement. There are several countries that would want to have a guarantee of perspective for membership. There are countries, such as Moldova, Ukraine, for example, that have no guarantees of the membership perspective, but they would love to have it. This perspective has not changed for BiH, however there is no progress.


We are now, in fact, in an absurd situation, as if it was my task to push this country forward to the EU membership. Nonetheless, that is not the way it works. That is why we said that the perspective remains and that we stand ready for cooperation. However, until our partners express their willingness to lead their country to the EU, it is pointless to continue with the efforts. No country has entered the EU integration process against it own will. This is the process that must originate inside the country. It must be ‘’yours.’’ The whole society must support that process, while politicians must present that position by their concrete actions. Currently, this process did not stop, however there is no moving forward.


I have been in Brussels this week, and we discussed the [5] Declaration from Mostar to great extent. EU is willing to accept this as a first step, however that is only one small step and the second one did not follow. That process must continue and on the basis of the Declaration from Mostar. In particular, it means that politicians must discuss the transfer of authority to the State level in terms of the police reform. There has to be real work done with regard to the Law and afterwards the adoption of this Law would open the possibility to sign the SAA. But there is no continuance. It has been two weeks since the signing of the Mostar Declaration, and no follow-up. Unless there is an initiative within BiH, the EU can do nothing.


Besides, I see another peculiar situation and that is the illusion that the conditions for EU membership can be endlessly negotiated – that there is a possibility to accept certain responsibilities and when it is time to implement them there can be an arrangement with the EU that this is not going to happen. The police reform is an obvious example of this. The fact is that this country has accepted that condition, regardless of different positions on this issue. During the course of 2005, three parliaments voted for a commitment to agree about the police reform and it was accepted that the police reform would be a condition for signing the SAA. For two years the experts made great efforts and did their job well. The reached an agreement on SAA on a technical level, but there is no progress with regard to the police reform. 


Two years later, the EU said: “Alright, we have done our part of the work, your experts did their part of the work, now it is up to you, the politicians in BiH to do your part of the work.” And what do we hear: “There is no police reform. Why? It is not fair!”


Your politicians are not serious in their attitudes towards the EU. The EU has partnership relations with all countries, we agree on the conditions, and everyone must do their part of the work. There were voices that said: “We are obviously unable to agree on police reform, so we will ask the EU to eliminate that requirement.” Again, this illustrates a deep lack of understanding of how the EU functions. It is not possible for someone to assume an obligation and then realize that they do not have the strength, willingness or courage to meet that obligation and simply move on to the next issue.


A partnership must be built up on mutual trust, and trust means that we do not lie to each other, we speak openly about problems, but we also fight to fulfill everything we accepted to do. That is the absurd situation that we are currently facing in BiH, especially with regard to police reform.


Simply said, the main principle of the European process is that of communicating. European conditions are clear, transparent and equal for everyone. If I want to join the EU, I must have the same quality in order to be a full-fledged member, instead of being like an exotic bird in a cage that everyone else stares at, while I cannot function. In order to function as a full-fledged member, I must fulfill certain requirements. These requirements are simply qualifications, in order to be allowed into the club of member countries. For that reason it is completely wrong to think that the requirements can be negotiated in order to win certain shortcuts or concessions. Yielding to such attempts would only work against our interests. The EU is a highly complicated mechanism, and if I am unable to function fully, then I am in an unenviable position. I must fight to fulfill all the conditions in order to be able to function as a member, and not like the example of an exotic bird in a cage, which I illustrated a moment ago. There are no shortcuts, there are no concessions, and it is in the interest of every country to change the way it functions in order to get as close as possible to Europe, and to function as its full-fledged member.


This is the reality and it is not encouraging, but we must present things as they are.


Everything I said brings me to my third question: “Why is this so?”


I think that one thing is obvious, and it is the lack of understanding for the essence of the European process on the part of domestic politicians.


The other thing I want to stress is the fear of change. This fear is both human and political. It is human, of course, because politicians are people too, and they are afraid that changes would work against them. The process of European integrations requires more transparency, clear rules of the game, more public control and less space for alternative methods of action. Political fear exists because there is tremendous distrust in this country and fear that people will lose what they have. Most politicians think about it in the following way: “It is better to avoid any changes because I might lose everything I have. What I have is not much, but at least I know I have that, it is mine and I will not let anyone take it away.”


I can give you two examples that illustrate this fear very well.


One politician says: “If EU integration means the abolishment of Republika Srpska (RS) police, then we do not want EU integration!” Another politician, however, says: “If EU integration means accepting the results of genocide, then we say ‘no’ to European integration!”


First of all, this is a completely unnecessary confrontation. Secondly, the following question must be asked: “Will we punish the EU if we reject membership, or will we punish ourselves and our citizens?”


Lately one issue has become crucial in BiH, and it is the status quo. Does the status quo mean that we do not lose what we have? For most politicians this is a sufficiently strong argument, they are afraid to lose what they obtained in the last 12 years. The problem with status quo is that nothing can be gained – we do not lose anything, but we also do not get anything. And that means that we are stagnating. My question is whether we can move forward and stand still at the same time. With status quo, we cannot even think about this country moving forward towards membership in the EU.


I will only give you one example: Thirty years ago, in countries like my home country, Slovakia, or for example Poland and Hungary, we could not even imagine working in western Europe, while your fathers and grandfathers worked as “gastarbeiters” in Europe to earn money. Today, your fathers are still working as “gastarbeiters”, while we are there, doing jobs within our professions and entitled to all the rights and full protection. That is the difference between status quo and moving forward.


And now we come to my fourth question: “What must be done to change things?”


BiH has tremendous European potential. There is no doubt about that. There is information indicating that 70% of citizens support the process of European integration. Majority support exists in all segments of society, in both entities, across all three constituent peoples. That is a fact and something I am convinced in. But what is missing? We are missing action. The 70% of citizens are still ignored. The fact that the European idea is the most powerful idea in this country is not reflected in practical action of your political leaders. On the other hand, the 70% of citizens who support membership in the EU are ignoring the fact that politicians are not fulfilling their objectives.


There is no connection between what people want and what politics is really doing to fulfill the wishes of citizens. Generally speaking, it is necessary to harmonize wishes of citizens and concrete moves on the part of politicians. It is necessary for political leaders to reach a strategic agreement, which is non-existent in BiH now. BiH gets by on the politics ‘from today till tomorrow, from tomorrow till the day after tomorrow’. We do not have a definition where we should go, what we should do in order to accomplish the goal and we lack indicators to show us if we are going in the right direction and at a sufficient speed. I will mention an example of a dog spinning around trying to catch its tail instead of going in a certain direction.


When it comes to that strategic goal, it is necessary to analyze what needs to be done to achieve that goal. As I have initially mentioned quotes from the European Commission document, the conditions are clear:  



  1. Police reform in line with the three European principles
  2. Full co-operation with the International criminal tribunal for former Yugoslavia (ICTY)
  3. Public broadcasting reform
  4. Public administration reform 

Very simple on one hand and very complicated on the other. In all countries that have been successful, the issue of European integration was placed above political disagreements, regardless of who was in government and who was in the opposition. The only question discussed was in terms of “Why aren’t things proceeding faster? Where are the problems? Who is an obstacle?”


This must be the case here in BiH as well. A social consensus is necessary, it is necessary for all to know where we stand, how we are progressing, in a good or in a bad way, and this should be a transparent process. The transparency means that we have a public control and a public debate.


In my view, what is particularly interesting, and I think I know this region well, and I know that BiH is a country like all the neighboring ones, however, I must mention this, I am stunned by the fact that there are no public figures who can allow themselves to be disapproving, who have dignity and have the right to criticize the government. In all countries in central Europe and in the Balkans NGOs had an enormous role in mobilizing the public, in activating a discussion in all segments of the society so that everybody becomes part of the process. Of course, we mustn’t neglect the role of independent media.


When the negotiations on the police reform failed, I openly said to your political leaders: “If you sign this paper, [6] Olli Rehn will be here in ten days to initial the SAA, if you don’t sign it, the European process will be halted.” They did not sign it, and I did not hear anyone asking your politicians the question “Why, why did you deprive us of the European perspective?”


Where are these 70% of citizens who, according to results of many polls, are interceding in favor of the European road of BiH, politicians must feel the public control.


This is a process in which the whole society must take part for it concerns all of you. We, in Slovakia, organized an institution that was called a National Convention. We were meeting on a regular basis and talked about what we needed to do on the road to Europe. European integration, European future must not be abused and used for petty political purposes.


I wish I could tell you that there is another way, but there is not.


You, as young people, have a special role in this country. The fact is that I have not at all noticed that the young generation exists when it comes to the EU integration. I have not heard the voice of NGOs, students’ associations. No one is asking politicians to give explanations for their actions. People are dissatisfied, but they think that someone from the outside may resolve everything. But this is not the right way. The social energy must be created, and only those most interested in it can do this, and that would be you.


There is a series of experiences how this may be achieved. You can simply take over such experiences. The funds are there, European Union Member States are willing to provide support.


So, these are the facts and I would like to hear your opinion, of course, we are here to help. As you know, I have two hats, the [7] High Representative and the [8] EU Special representative in BiH. This latter hat is less visible for it is not connected to the Bonn powers, and for many this means it should not be feared. So there is a view on the part of domestic politicians:


‘Now Lajčak speaks in the [9] EUSR capacity, why would we listen to him, now he cannot remove us.’


We had a representative of the EU, and even without the Bonn powers, he had a moral authority just as the High Representative has it in this country. The difference is in the fact that we wanted the European perspective for our country, and for us, the European representative was the authentic Europe.  


My task is to help the EU issue get the central stage, not because of the fear of the Bonn powers, but with a view to achieving a positive future within the EU.


In the end, my message is – and I’ll quote my famous sentence:


“It takes two to tango”; we are still looking for that other partner who wishes to be in the EU.


Thank you for your attention, I will carefully listen to your comments. 


* * * * * * * * * * *  


[1] ACIPS (The Association of the Alumni Center for Interdisciplinary Graduate Studies), has been created in February 2003. as a result of the activities of the Center for Interdisciplinary studies of the University of Sarajevo. It is a nongovernmental association of young experts in the field of democracy, human rights, state rule, humanitarian questions and the EU integration processes.


[2] The Agreement represents EU’s legal framework in the relationship between the potential member state of the EU (in this case BiH) and the EU, gradually preparing the country for the attainment of a full-fledged  membership in the EU.


[3] The three EU principles:



  • Place exclusive competence for police legislation and budget at the state level;
  • Recast regional police areas on the basis of functional police criteria;
  • Help protect the police from improper political interferences.

[4] ICTY (The International Criminal Tribunal for the former Yugoslavia has been formed through the 827 Resolution of the Security Council of the United Nations (UN).This Resolution has been established on May 25th, 1993. The International Court has been established to prosecute serious crimes committed since 1991. in the former Yugoslavia, and to try their alleged perpetrators.


[5] The leaders of six leading parties in Bosnia and Herzegovina have signed the Declaration of Mostar on October 2007. , by which they oblige themselves to work on the reform of the police, lead by the three EU principles.


[6] Olli Ilmari Rehn was born in Mikkeli, Eastern Finland on March 31st, 1962. He is currently serving as the European Commissioner for Enlargement.


[7] Since  the signing  of  the Dayton Peace Agreement by  BiH, Croatia, and Serbia  on December 14th, 1995. in Paris, the High Representative,  in  the  name of the International Community is  responsible for observing  the establishment of civil aspects of the Peace agreement in BiH. Currently representing the office of the HR, is Miroslav Lajcak (March 20th, 1963.m Poprad, Slovakia), Slovak politician.


[8] The mandate of the EU Special Representative comes from the political goals of the EU in BiH. These are; helping to establish a forward movement in the fulfillment of the Dayton Peace Agreement as well as in the process of stabilization and joining the process that will bring BiH closer to the EU.


[9] The EU has currently nine Special Representatives (EUSR) in different regions in the world. The Special Representatives of the EU promote politics and interests of the EU in problematic regions and countries and contribute an active part in the process of securing peace, stability and the rule of law. The Special Representatives of the EU give support to the mission of Javier Solana, the High Representative for mutual foreign and  security politics in given regions.

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